How can bureaucrats help change light bulbs? Evaluation of pro-poor energy initiatives in Taiwan

In response to global net-zero transition pressures, Taiwan has adopted a multifaceted approach in its policies, expanding beyond energy efficiency to prioritize fairness and justice, especially for marginalized communities. This commitment is exemplified in the residential and commercial electricity-saving policy. Since 2012, the central government, in collaboration with municipal governments, has progressively introduced more comprehensive initiatives. Notably, "energy vulnerability care measures" were incorporated from the 2018 Municipal Energy Conservation Plan for the Residential and Commercial Sector, adapting to the changing landscape.

 

However, the conditions of energy vulnerability in Taiwan deviate from the conventional discourse on energy poverty, which typically addresses winter heating needs within liberalized electricity markets. Unique characteristics, such as low electricity prices and peak consumption for cooling in the summer, demand a distinct approach. Notably, energy-vulnerable care measures are situated within the broader framework of "energy conservation policies," with each county and city tasked with planning and executing these measures independently. In this context, bureaucratic inertia, rooted in a historical adherence to central directives, presents difficulties, especially in policies demanding local knowledge and frontline experience. The existing disparities in resources and capabilities among counties and cities further compound the challenges faced by local administrations.

 

This study aims to bridge the gap between the Western-centric discourse on energy poverty and the evaluation of vulnerable groups within Taiwan's net-zero transition. It seeks to comprehend the challenges faced by local governments in implementing these policies and aspires to enhance the well-being of energy-vulnerable groups. To achieve these goals, the researcher initially conducted a preliminary inventory by examining the energy-conservation reports of each county and city. Subsequently, semi-structured interviews were undertaken to investigate not only the designation and implementation of these measures but also the horizontal and vertical obstacles to collaboration between local and central governments. The interviewees included project organizers, unit supervisors, commissioned companies, and their cooperative organizations.

 

The findings underscore a dual path dependence in the decentralized approach, revealing both vertical and horizontal dimensions. Local bureaucrats advocate for a mandatory policy coupled with central government guidance to provide clearer direction and momentum for implementation. Meanwhile, local governments tend to emulate measures from successful peers, even if these may not be the most critical for them. Despite hierarchical dominance in policy design within local government structures, interviews highlight that companies commissioned for implementation play a pivotal role. These entities exhibit a better understanding of the needs of vulnerable populations and policy shortcomings, which also makes local governments more inclined to rely on their expertise. The research advocates for a dual strategy: reinforcing top-down bureaucratic energy education while expanding bottom-up decision-making authority to empower relevant talents. Simultaneously, integrate energy-vulnerable care measures, currently under the environmental system, with the social welfare system. This alignment leverages existing trust foundations, integrating frontline knowledge and resources to effectively address energy vulnerability in Taiwan.